Relevant conceptual frameworks must guide data collection and analysis if data are to be useful to service program planners and administrators. Such frameworks are increasingly important in the systematic assessment of the total array of services in a planning region. This paper describes a two-dimensional classification matrix developed in relation to health and social services for older persons with a potential applicability to other service systems. The first dimension, level of competence, is outlined as five areas of behavioral functioning: (1) life maintenance; (2) perception-cognition; (3) self-maintenance; (4) effectance; and (5) social role. The second dimension, level of independence, is presented as defining a continuum of living arrangements that represent the level of need for support. This model suggests that, by using this system, services can be simultaneously differentiated according to the levels of competence and independence of those served. The utility of this framework for organizing service data is demonstrated through its application to information collected on services for the elderly in one location. Additionally, the potential of this framework as a tool in the planning process is discussed, and areas needing further development are identified. (Author/NRB)